on, Japan
was allowed 315,000 tons of capital ships and the United States and
Great Britain each 525,000 tons.

In his address at the opening session, Secretary Hughes said: "In view
of the extraordinary conditions due to the World War affecting the
existing strength of the navies of France and Italy, it is not thought
to be necessary to discuss at this stage of the proceedings the tonnage
allowance of these nations, but the United States proposes that this
subject be reserved for the later consideration of the Conference."
This somewhat blunt, matter-of-fact way of stating the case gave
unexpected offense to the French delegation. During the next four or
five weeks, while Great Britain, the United States, and Japan were
discussing the case of the _Mutsu_ and the question of fortifications
in the Pacific, the French delegates were cherishing their resentment
at being treated as the representatives of a second-class power.
Hughes's failure to regard the susceptibilities of a great nation like
France undoubtedly had a good deal to do with the upsetting of that
part of the naval program relating to subsidiary craft and submarines.

When, after the agreement on the 5-5-3 ratio, the question of the
allowance of capital ship tonnage for France and Italy was taken up in
committee, the other powers were wholly unprepared for France's demand
of 350,000 tons of capital ships. According to Hughes's figures based
on existing strength, she was entitled to 175,000 tons. It is not
probable that the French delegates intended to insist on such a large
tonnage. It is more likely that they put forth this proposal in the
committee in order to give the other delegates to understand that
France could not be ignored or dictated to with impunity and in order
to pave the way for their submarine proposal. Unfortunately the French
demands were given to the press through some misunderstanding and
caused an outburst of criticism in the British and American papers. In
the committee the relations between the British and French delegates
became very bitter over the refusal of the latter to abandon the
submarine, or even agree to a moderate proposal as to submarine
tonnage. On December 16 Secretary Hughes cabled an appeal, over the
heads of the French delegation, to Briand, who had returned to Paris.
As a result, the French finally agreed to accept the 1.75 ratio for
capital ships, but refused to place any reasonable limits upon
cruisers, dest